Former Commercial Hotel and Les Touristes, 26 and 27 Commercial Street, St. Helier

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A decision made (26.10.07) to grant permission (with conditions) of planning permission for the former Commercial Hotel and Les Touristes, 26 and 27 Commercial Street, St. Helier.

Decision Reference: MD-PE-2007-0304		Application Number: RP/2007/1525 (If applicable)
Decision Summary Title :	Former Commercial Hotel & Les Touristes, 26 & 27 Commercial Street, St. Helier	Date of Decision Summary:		30.10.07
Decision Summary Author:	Chris Jones	Decision Summary: Public or Exempt? (State clauses from Code of Practice booklet)		Public
Type of Report: Oral or Written?	Written	Person Giving Oral Report:		N/A
Written Report Title :	Former Commercial Hotel & Les Touristes, 26 & 27 Commercial Street, St. Helier	Date of Written Report:		26.10.07
Written Report Author:	Chris Jones	Written Report : Public or Exempt? (State clauses from Code of Practice booklet)		Public
Subject: Former Commercial Hotel & LesTouristes, 26 & 27 Commercial Street, St. Helier Demolish Les Touristes and 26 Conway Street. Construct 5 storey office development, including ground floor cafe. Single storey extension over former Commercial Hotel to form two storey office. Form ground floor cafe. REVISED PLANS: widen door opening to Commercial Hotel. Change of use from cafe to office (ground floor). New entrance and canopy to Victoria Chambers (Esplanade elevation.)
Decision(s): The Revised Plans Application was presented to the Ministerial Meeting of 26th October 2007 where it was approved by the Minister subject to Conditions.
Reason(s) for Decision: Permission has been granted having taken into account the relevant policies of the approved Island Plan, together with other relevant policies and all other material considerations, including the consultations and representations received. Conditions Within one month of the date of this permission, samples of all external materials to be used in the development shall be submitted to and approved in writing with the Minister for Planning and Environment. The approved scheme shall be implemented in full and retained and maintained as such. Notwithstanding any information submitted as part of the planning application, the proposed door widening details to the Commercial Street frontage are not approved. Within one month of the date of this permission, precise details of any proposed alterations to any of the existing door openings to the former Commercial Hotel building on the Commercial Street frontage shall be submitted to and approved in writing by the Planning and Environment Department. The approved scheme shall be implemented in full and retained and maintained as such. Reasons To safeguard the visual amenities of the area and to ensure the materials used contribute positively to the streetscape in accordance with Policy G3 of the Adopted Island Plan 2002. These details are required to be agreed to ensure their appearance is not harmful to the character of this registered building in accordance with Policy G13 of the Adopted Island Plan 2002.
Resource Implications: None
Action required: Notify Agent, Applicant and all other interested parties
Signature:			Position:
Date Signed:			Date of Decision (If different from Date Signed): 26 October 2007

Former Commercial Hotel and Les Touristes, 26 and 27 Commercial Street, St. Helier - grant permission with conditions

Planning and Environment Department

Report

Application Number

RP/2007/1525

Site Address	Former Commercial Hotel & LesTouristes, 26 & 27 Commercial Street, St. Helier.

Applicant	Ms P Gibson Wynbrook (Holdings) Limited

Description	Demolish Les Tourists and 26 Conway Street. Construct 5 storey office development, including ground floor cafe. Single storey extension over former Commercial Hotel to form two storey office. Form ground floor cafe. REVISED PLANS: widen door opening to Commercial Hotel. Change of use from cafe to office (ground floor). New entrance and canopy to Victoria Chambers (Esplanade elevation.)

Type	Revised Plans

Date Validated	26/06/2007

Zones	Building of Local Interest (26 Conway Street and Commercial Hotel). Built Up Area. Town Proposals Map. Potential Town Conservation Area. Proposed Pedestrian Improvement Area. Town Centre.

Policies	G2 – General Development Considerations. G3 – Quality of Design. G13 – Buildings and Places of Architectural and Historic Interest. G15 – Replacement Buildings. G16 – Demolition of Buildings. BE2 – Proposals in the Town of St. Helier. BE3 – Town Centre Vitality. IC2 – Offices in St. Helier Town Centre. IC13 – Protection and Promotion of St. Helier for Shopping. H10 – Loss of Housing Units. WM2 – Construction and Demolition Wastes Plan.

Reason for Referral	Ministerial Call-In. Design and Appearance. Size and Scale of development proposal.

Summary/

Conclusion

The form and scale of development on the site was approved by the Minister in February 2007 and this proposal seeks to undertake some internal and external changes to those approved plans namely:

the removal of the existing flank wall to Victoria Chambers (No. 1 Esplanade) to create integrated office space with the new development through 5 storeys;
the formation of a larger entrance door from the Victoria Chambers Esplanade elevation;
the creation of new office floorspace on ground floor instead of café off Conway Street (former Commercial Hotel to still be café);
no requirement for new café entrance door off Conway Street, now to be window instead;
re-use existing access off Commercial Street for café access, and
re-location of plant enclosure on roof.

The comprehensive use of this site will remove a particularly untidy site from this important gateway street to St. Helier’s core retail area and replace it with a well considered modern development in accordance with policies of the Island Plan.

The scale and sub-division of the façade is appropriate to the context of the surrounding buildings and the street, whilst the re-use of the Registered Building (Commercial Hotel) ensures a long-term beneficial use. The proposed revisions to the originally approved scheme will not have an adverse impact on the character and appearance of the area.

Officer

Recommendation

Approve subject to conditions.

Site Description	The site forms the corner of Commercial Street and Conway Street and all the land behind Victoria Chambers. Prior to demolition it included “Les Tourists”, a vacant building and a yard. The former “Commercial Hotel” building remains.

Relevant Planning History	2006 – (Minister Approval subject to conditions) P/2006/1852 – Demolish Les Tourists and 26 Conway Street. Construct 5 storey office development including ground floor café. Single storey extension over former Commercial Hotel to form two storey offices. Form ground floor café. 2005 - (Sub-Committee Approval) – P/2004/0324 – Change of use to form café and amusement arcade. AMENDED PLANS. Construct 2 storey link and change of use to form café and amusement arcade. 1997 – Refused (P/1996/1815). Demolish 18-26 Conway Street. Construct 4 and 5 storey offices with basement parking. The proposal entails the demolition of a building included within the Register of Buildings of Architectural and Historic Importance and which is also identified as a Building of Townscape Importance within the Island Plan, whose demolition would be contrary to Policy BE7 of the Island Plan. The proposal would result in a loss of residential accommodation, not serving the best interests of the community. The proposal represents overdevelopment of the site by virtue of its mass, scale and design and would have an adverse and prejudicial impact on the amenity of adjoining properties and the character and appearance of the area. The proposal does not include adequate car parking provision complying with the standards adopted by the Planning and Environment Committee. 1997 – Refused (D/1996/1050). Demolish 18-26 Conway Street. Construct 4 and 5 storey offices with basement parking. 1. The proposed scheme entails the demolition of a building included within the Register of Buildings of Architectural and Historic Importance and which is also identified as a Building of Townscape Importance within the Island Plan whose demolition would be contrary to Policy BE7 of the Island Plan. 2. The proposal would result in a loss of residential accommodation, not serving the best interests of the community. 3. The proposal represents overdevelopment of the site by virtue of its mass, scale and design and would have an adverse and prejudicial impact on the amenity of adjoining properties and the character and appearance of the area. 4. The proposal does not include adequate car parking provision complying with the standards adopted by the Planning and Environment Committee.

Existing use of Land/Buildings	Former vacant public house with residential unit above. Vacant building at the south of the site. The Les Tourists building incorporated a retail unit at ground floor and an office above. Construction work in progress in implementation of part of P/2006/1852.

Proposed use of Land/Buildings	Office (2300m²) and café (71m²).

Consultations	Parish in their letter dated 10/08/07 state “No objections.” Historic Buildings Officer in their letter dated 01/08/07 state “No objections subject to condition.” All consultations are attached with the background papers

Summary of Representations	No letters of representation have been received.

Planning Issues	Policy Considerations Policy G13 states that there will be a presumption in favour of the preservation of the architectural and historic character and integrity of registered buildings and places. Permission will not normally be granted for the total or partial demolition of a registered building or extension or other external alteration works which would adversely affect the architectural or historic interest, character or settling of a registered building or place. Policy H10 states that proposals that would lead to the loss of residential units or floorspace will not normally be permitted. Where a proposal would lead to a loss of residential units or floorspace, applicants will normally be expected to replace this loss on site. Policy BE2 states that the Planning and Environment Committee will take into account the context of the development and its contribution to the townscape, public realm, the potential to regenerate outworn areas of the town, to remove eyesores and re-locate un-neighbourly uses, the quality and character of the proposed development and the positive contribution it would make to the vitality and viability of the town centre. Policy BE3 states that within the town centre, the Planning and Environment Committee will seek to promote the viability and vitality of the Town Centre and resist the loss of existing ground floor retail units to non-retail uses and resist the loss of residential units within the town centre. Policy IC2 states that the development of new offices and extensions to existing office accommodation will normally be permitted within the St. Helier provided that the proposal is accessible by pedestrians, cyclists, public transport users including those with mobility impairments, will not have an unreasonable impact on neighbouring uses and the local environment and will not lead to unacceptable problems of traffic generation, safety or parking. Policy IC13 states that the role of St. Helier town centre as the main retailing centre of the Island will be protected and promoted. Changes of use involving a loss of ground floor retail floor space within the town centre will not normally be permitted. Policy G16 states that the demolition of a building or part of a building will normally only be permitted where the proposal i) involves the demolition of a building or part of a building that is not appropriate to repair or refurbish; ii) would not have an unacceptable impact on a Site of Special Scientific Interest, Building of Local Importance of a Conservation Area; iii) would not have an unreasonable impact on the character and amenity of the area, and iv) makes adequate provision for the management of waste material arising from demolition as required by Policy WM2. Policy WM2 states that any development proposals involving the demolition of major structures or removal of significant quantities of waste material during construction shall identify the means by which the waste material shall be re-used, recycled or disposed of either within or off the site. Land Use Implications With the exception of the former Commercial Hotel, the previously vacant buildings have now been removed from site and the steel framework has been erected. The new use for the site will comprise offices and a café in the former Commercial Hotel building. The loss of the originally proposed ground floor café in the new building to additional office floorspace is acceptable and in compliance with Policy IC2 of the Adopted Plan. The issues relating to the loss of the former retail and housing uses on site have been previously considered. Size, Scale & Siting The building will comprise a five storey development; the size, scale and siting having been previously considered and determined in February 2007. This current application does not propose to alter building heights or siting and as such the scale is deemed to be acceptable in terms of its impact on the streetscape. Design & Use of Materials The design of the proposal as previously, follows the traditional window rhythm and form of Victoria Chambers. In addition, the design responds to the historic plot widths, the string course tie into those at Victoria Chambers and a clear hierarchy of detail is proposed to enliven the building at pedestrian level in comparison to the simple façade above. This accords with the general approach used historically in this area in accordance with Policies G3 and BE2. Notwithstanding these references to the established pattern of development in Conway Street, the scheme is contemporary in detailing and this considered to be an appropriate form of development in this area, whilst still retaining local relevance in terms of materials. A coloured render is proposed for the first, second and third storeys and granite for the ground floor. The use of a standing seam metal roof is not common in this area, although the Lloyds Bank building in close proximity uses lead in a similar fashion. In any event, the roof will not be clearly visible except at longer distances. The previous proposal included an entrance to the (now deleted) café on the ground floor in Conway Street, which was to be next to the existing Victoria Chambers building. This arrangement has now been replaced with glazing which replicates the other proposed glazing on the ground floor. The originally proposed office entrance doorway with stainless steel/glass canopy over has also been relocated to be adjacent to one of the existing single width door entrances to the Commercial Hotel. Given that the revised proposal involves the removal of (now) internal areas of blockwork on Victoria Chambers directly adjoining to create five floors of continuous office floorspace, this now involves the creation of a new larger width ground floor entrance to the front façade of Victoria Chambers where it fronts The Esplanade. This new entrance will comprise a stainless steel and glass canopy, stainless steel curtain walling with an entrance door and a revolving door. The existing single door entrance will be changed to a window. The existing opening will be retained and glazing and a granite panel inserted to be consistent with the other window on the ground floor. It is considered that the design and appearance of this detailing is acceptable. There are 3no. existing single width doorway entrances in the Commercial Hotel façade fronting Commercial Street. The originally approved proposal sought to close the central doorway and replace it with a new window. This current proposal now retains this existing doorway opening, but seeks to widen the doorway entrance where adjoins No.s 5 and 6 Commercial Street. This is to enable suitable access to the proposed internal refuse store. As a proposed change to the originally approved scheme, the proposed plant enclosure to be situated on the roof is to be re-located some 1.9m closer to the Commercial Street frontage. This is to accommodate the slightly re-located lift shaft. However as in the previous scheme, the plant area will be screened by the proposed mansard roof arrangements and will not be visible from outside the site. The proposed plant roof located on the second floor over the former Commercial Hotel was previously indicated to be located adjacent to the internal stairs to the first floor. This arrangement has now altered in the current scheme so that the plant room is proposed to be accessed direct from the flat roofed area between the edge of the building and the proposed 0.8m high glass balustrade. The plant room will be enclosed by an aluminium louvered screen to match the fascia to the second floor curtain walling and behind the glass balustrade and as a consequence, it is considered that this element will not have any adverse impact on the design and appearance of the building or the street scene in general. The applicant’s agent had originally confirmed that the proposal to widen one of the existing doors of the former Commercial Hotel building off Commercial Street is linked to the requirements under the Building Regulations legislation to be used as a final means of escape and the revised plans indicated a 1.1m wide door opening with an internal bin store and internal stairs. The Historic Buildings Officer (HBO) has taken the view that as this is one of the original doors to the building then its opening should remain unaltered. Building Control have further confirmed that the bin store location arrangements are unacceptable and given the views of the HBO, the applicants need to find alternative arrangements to satisfy their legislation. The agents have also confirmed that given the possible requirement to alter the internal floor levels of the new café in the former Commercial Hotel building, then there may be a requirement to undertake some alterations to the two other doors on the Commercial Street elevation. No details have been submitted to indicate any possible changes and this matter will need to be conditioned accordingly. Impact on Neighbours The revised proposal is of the same scale and size as the previously approved proposal and does not result in any adverse impact on neighbouring properties. Access, Car parking and Highway Considerations Prior to granting planning permission, consideration was given as to whether or not the development should provide any car parking. It was resolved that any car parking provision on site would encourage private car usage contrary to the Strategic travel objectives of the Island Plan and would as a consequence, be extremely harmful to the vitality of the pedestrian level façade. In any event, the site is located in close proximity to good public transport links, including cycle parking provision and is in close proximity to residential areas of St. Helier. Foul Sewage Disposal The site is connected to the foul sewer. The previously submitted scheme raised a number of technical issues requiring the developer to obtain an agreement with T&TS (Drainage). Landscaping issues The site currently has no landscaping and none is provided. Within the context of the street it is reasonable to permit the development without additional landscaping. Other Material Considerations Issues such as the demolition of the existing buildings, waste generation, the removal of roofs and chimneys and a contribution to the provision of public art through the Percentage For Art mechanism have been covered as part of the previously approved application for the site.

Officer Recommendation	APPROVE subject to conditions.

Conditions/ Reasons	Within one month of the date of this permission, samples of all external materials to be used in the development shall be submitted to and approved in writing with the Minister for Planning and Environment. The approved scheme shall be implemented in full and retained and maintained as such. Notwithstanding any information submitted as part of the planning application, the proposed door widening details to the Commercial Street frontage are not approved. Within one month of the date of this permission, precise details of any proposed alterations to any of the existing door openings to the former Commercial Hotel building on the Commercial Street frontage shall be submitted to and approved in writing by the Department. The approved scheme shall be implemented in full and retained and maintained as such. 1. To safeguard the visual amenities of the area and to ensure the materials used contribute positively to the streetscape in accordance with Policy G3 of the Adopted Island Plan 2002. 2. These details are required to be agreed to ensure their appearance is not harmful to the character of this registered building in accordance with Policy G13 of the Adopted Island Plan 2002.

Background Papers	1:1250 Location Plan. Letter from agent. Planning and Environment Department Report. Minister for Planning and Environment Public Application Meeting Minute dated 16/02/07. Planning Permit P/2006/1852 dated 16/03/07.

Endorsed by:

Date: